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<br />, PDdjiC lAw JountDI I Vol. 19
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<br />1988 / California Colorado R/~r ISSIla
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<br />author's Interpretation of the law now. At the same time. it should
<br />be recognized that If at any time the arfected parties and institutions
<br />.n agree, a change can be made in a particular provision of the Law
<br />of the River, or . provision can be waived, Whether any chanle!
<br />should even be recommended Is beyond the scope of thll .rticle, The
<br />.rtide proceeds on Ihe assumption Ihat lame parties wish 10 act In
<br />relation to the use of Colorado River water in some manner not
<br />clearly authorized by the Law of the River and withoul securing the
<br />consent of all of the affected parties. Further I It is not the intent of
<br />this article 10 pass judgment on whether 1000 public policy supports
<br />any changes in the law in this area.
<br />
<br />B. 17r~ Colorado Riv~r Compacr
<br />
<br />The history of the Compact negotiations and its ratification is a
<br />long and valuable resource for those dealina with Colorado River
<br />mauers. but need not be dealt with extensively here.11 A point of
<br />hislorlcal and legal importance. however, must be noted. After early
<br />failurel at an .Hempl to apportion the "'aler of the river between
<br />the states, the "egoti.ton settled on apportionlnl the use of the
<br />waters of the Colorado RivCf between the Upper and the Lower
<br />Basins. With this approach. Oley quickly reached agreement on Ihe
<br />Compact. Also. the apportionment was on the basis of "beneficial
<br />consumptive use" rather than ownership of the water itself.n This
<br />phrase, "beneficial consumptive use," appears repeatedly in Law of
<br />the River documents and plays a major role in the analysis of many
<br />Colorado River issues.
<br />The Compact, after defining such terms as "Colorado River 5)'5.
<br />tern:". "Upper Basin,"" and "Lower Basin:'" (but failing to define
<br />the term "beneficial consumptive use") included five key provisions. If
<br />
<br />The Colorado River Compacl is the cornerstone to the Law of the
<br />River and was inlcnded to meel or assisl in meeling several Colorado
<br />River Basin needs. The Lower Basin Slates, consistina of Arizona,
<br />Nevada and California. dC'Speratc'y needed. rivet regulation. flood
<br />control and water storage for development. The Upper Basin. con-
<br />sisling of Colorado, New Mexico, Utah, Wyoming and a portion of
<br />Arizona, also needed storage for development. Primarily, however,
<br />the Upper Basin states were concerned about California's plans,
<br />particularly the growing coastal area of Los Anseles. to appropriate
<br />waters of the Colorado River system, Los Angeles and ils surrounding
<br />areas was sWdying the possibility of transporting Colorado River
<br />water to the burgeoning cities and communities and salisfying the
<br />growing needs for electric power for the area,' The Upper Basin
<br />Slafes Ihus needed 10 quell lheir fear thac the water would be
<br />appropriated before the lJl?pcr Basin. could begin economic devel-
<br />opment of Ihe Colorado Rfer system in the basin. In context, and
<br />with pressure brought by all the Colorado River basin stales, Congress
<br />aUlhorized Ihe negotiation of a Colorado River Compact in 1921.11
<br />President Harding felt that Ihe federal interest in this project was
<br />sufficient 10 appo~nt the Secretary of Commerce, Herbert Hoover,
<br />as Ihe federal reprtmltative in the negotiations,lI
<br />.
<br />
<br />12. Due 10 Ihe objectiOIlJ or ArilOl'lll, llriflalion of the Com~ by all M'Yl!Il IUlln "...
<br />nOI po'llible II Ihe lime. The Bouldn" Canyon Projcel 1.1:1 or 19.1.1. proridrd In .lIern.1t
<br />III;fiC'llion prom:lure of .pproval of all ILlla indudin, Cllifomi&. provided Ihl1 Cllirornia
<br />.&.ttd '0 limll.," UM or Colo(ldo R.ivtf "Un" 10 4.400,000 lCI'C.ftrl per ya.r plul OM half
<br />of Iny lurplul. 'T'M Act. .110 C'onl.inn:! ConlfCllional .pprovII of the Camp.ct.. All Ihnc
<br />evenll look pl.ce. Ind Ihe CompllCl ..enl inlo err., in 1929. AriZOlll fillllly r.lirlon:l Ihe
<br />Complct. ill 194.4. OJ! lhe lubjKt of rlliflUlioa Sft WUUI a Eu. "'",. note ), II ),-4)
<br />1~llrdjnl the lubjec1 of nriflCltion): ltifrrl lell II nDlel ]7....) (!he Boulder Can)'OfI Project
<br />ACII.
<br />D. s" HI/IfDLI!Y.1IIprG nQle ), II 1651lreprdin, dw diybioa bcIween dle SUlM). Wilei'
<br />nlhu ~nl eon fined 10 Ihe ri,hl 10 bmriici.1 \1M or w.ler fllhn" I""" oWfteuhip il a,rnmon
<br />in (he We'll. Sno, ,.,.. Cu. COlollT. 1l'1. X, I 2; Cu. w...Tn. COOl' 102 (dedarn _nenhip
<br />10 be in Ihe Illle, wilh individull ri,hll 10 Wlln" bein, confined 10 r_nlble bcnefK'i1l 11M).
<br />14. Compact. ftlpnll\OI.e 1, It ut. 11(.1 ("the term 'Color. -'i"er Syllem' met.n. th.l.l
<br />poniol'l or Ihe Colora40 Ri"er Ind ill Iribulltin wilhln II\e Uniled SIIICI of AmniCln).
<br />H. Id. II an. 1I(f) ("The In"m 'Upper Buln' ~ IhOll: pam of II\e Sta(d of Arizonl.
<br />Color.do, New Mu.ieo. Utlh. .nd Wyomin. wilhln and from whk:h .alerl 1IIlurall)' dr.i."
<br />inlO the Colondo Rim Syum'! .bove Lee Ferry, IJld 1110 .11 puts or ..id SalCl loeIltd
<br />withou( (he dralute area o( the Colorado Illyer System which. Ire tIO... 01' ,hiD hcIu.(ler be
<br />benrficially Mlved by WllmI diverred from.he S)'IInn lbove Lee FCfT)'.").
<br />16. Id. II In. 11(.) ("'Tbe lerm 'Lown" Bula' meanlthow puu of ArlrOn., Cllifomil,
<br />Nevada, New Me..ic-o, .nd Ulah wilhin .nd florn ...hlch _llerl Rllu.r.lly drain In10 Ihe
<br />Colorado Ri"n" Syllem ~Iow l.ft Frrry. and ,1110 III pIInl of ..id Slain loeIled .;lhOllI Ihe
<br />d.rlinaJe ..rta of 1M: Colorldo Ri"er Syu.ertl "'''k.'' In now 01' ..un hereaf'1a be bcntfkia1ly
<br />Mrved by _"en dl.med from the SYIIIm brlow Lee Ferry.").
<br />If. Id.'1 art. III. The Cornpad provida Ihe follcrorins: .
<br />Ca) There is hn'ebr appouiorwd from Ihe ColoradO Riyer S)"Ilan In perpelllilJ to
<br />Ihe Upp<< Balin .nd 10 lhe Lower Bllin, rapeet;vely, lbe QChaift benrncill
<br />c.ons.u.mptiw: ilK of 7.500.000 ICtt.(oeet of wlter ptI" lMu.m. ...t\1r:h. sMIl i.nclu.ck ..Il
<br />Yl'lIItl' net"e'l5a1)' for lhe lupply of an)' nIhil "hich may no. ail!.
<br />(b) In .ddition to Ihe .pponionmml In par'lfaph (I). the l.ooIoer Buin II hereby
<br />liven lhe tlpl 10 incnue lIS bcMfldal CIOIIlUmpllwc 11M of Iud! _tin bJ one
<br />
<br />,. 5H WnM.\'. ~l1. "'p". note!o at 17.
<br />Ip. 5H w,.,. nott ) .nd an:ompan)'lna Inl. Srr HInfDLIT, IIqWW nalc , (In nAlln1
<br />hillc;y of 1M COlllpllCI).
<br />1\. w........a ElY.StlprtI noIe 1. II 19.
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